[Federal Register Volume 59, Number 179 (Friday, September 16, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-23081]


[[Page Unknown]]

[Federal Register: September 16, 1994]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[CA 79-1-6637a; FRL-5069-2]

 

Approval and Promulgation of Implementation Plans; California 
State Implementation Plan Revision, Sacramento Metropolitan Air Quality 
Management District

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action on revisions to the 
California State Implementation Plan (SIP). The revisions concern rules 
from the Sacramento Metropolitan Air Quality Management District 
(SMAQMD). The revised rules control VOC emissions from Architectural 
Coatings, Leaks from Synthetic Organic Chemical and Polymer 
Manufacturing, Storage of Petroleum Products, Organic Liquid Loading 
and Can Coating. This approval action will incorporate these rules into 
the federally approved SIP. The intended effect of approving these 
rules is to regulate emissions of volatile organic compounds (VOCs) in 
accordance with the requirements of the Clean Air Act, as amended in 
1990 (CAA or the Act). In addition, the final action on these rules 
serves as a final determination that the deficiencies in these rules 
have been corrected and that on the effective date of this action, any 
sanctions or Federal Implementation Plan (FIP) obligations are 
permanently stopped. Thus, EPA is finalizing the approval of these 
revisions into the California SIP under provisions of the CAA regarding 
EPA action on SIP submittals, SIPs for national primary and secondary 
ambient air quality standards and plan requirements for nonattainment 
areas.

DATES: This final rule is effective on November 15, 1994 unless adverse 
or critical comments are received by October 17, 1994. If the effective 
date is delayed, a timely notice will be published in the Federal 
Register.

ADDRESSES: Copies of the rule revisions and EPA's evaluation report for 
each rule are available for public inspection at EPA's Region IX office 
during normal business hours. Copies of the submitted rule revisions 
are available for inspection at the following locations:

Rulemaking Section (A-5-3), Air and Toxics Division, U.S. Environmental 
Protection Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 
94105
Environmental Protection Agency, Air Docket 6102, 401 ``M'' Street SW., 
Washington, DC 20460
California Air Resources Board, Stationary Source Division, Rule 
Evaluation Section, 2020 ``L'' Street, Sacramento, CA 92123-1095
Sacramento Metropolitan Air Quality Management District, 8475 Jackson 
Road, suite 230, Sacramento, CA 95826.

FOR FURTHER INFORMATION CONTACT: Daniel A. Meer, Chief, Rulemaking 
Section (A-5-3), Air and Toxics Division, U.S. Environmental Protection 
Agency, Region IX, 75 Hawthorne Street, San Francisco, CA 94105, 
Telephone: (415) 744-1185.

SUPPLEMENTARY INFORMATION:

Applicability

    The rules being approved into the California SIP include: SMAQMD's 
Rule 442, Architectural Coatings; Rule 443, Leaks from Synthetic 
Organic Chemical and Polymer Manufacturing; Rule 446, Storage of 
Petroleum Products; Rule 447, Organic Liquid Loadings; and Rule 452, 
Can Coating. These rules were submitted by the California Air Resources 
Board (CARB) to EPA on March 29, 1994.

Background

    On March 3, 1978, EPA promulgated a list of ozone nonattainment 
areas under the provisions of the Clean Air Act, as amended in 1977 
(1977 Act or pre-amended Act), that included the Sacramento Metro Area. 
43 FR 8964, 40 CFR 81.305. Because this area was unable to meet the 
statutory attainment date of December 31, 1982, California requested 
under section 172(a)(2), and EPA approved, an extension of the 
attainment date to December 31, 1987. (40 CFR 52.222). On May 26, 1988, 
EPA notified the Governor of California, pursuant to section 110(a)(2) 
of the 1977 Act, that the above district's portion of the California 
SIP was inadequate to attain and maintain the ozone standard and 
requested that deficiencies in the existing SIP be corrected (EPA's 
SIP-Call). On November 15, 1990, the Clean Air Act Amendments of 1990 
were enacted. Public Law 101-549, 104 Stat. 2399, codified at 42 U.S.C. 
7401-7671q. In amended section 182(a)(2)(A) of the CAA, Congress 
statutorily adopted the requirement that nonattainment areas fix their 
deficient reasonably available control technology (RACT) rules for 
ozone and established a deadline of May 15, 1991 for states to submit 
corrections of those deficiencies.
    Section 182(a)(2)(A) applies to areas designated as nonattainment 
prior to enactment of the amendments and classified as marginal or 
above as of the date of enactment. It requires such areas to adopt and 
correct RACT rules pursuant to pre-amended section 172(b) as 
interpreted in pre-amendment guidance.\1\ EPA's SIP-Call used that 
guidance to indicate the necessary corrections for specific 
nonattainment areas. The Sacramento Metro Area is classified as 
severe;\2\ therefore, this area was subject to the RACT fix-up 
requirement and the May 15, 1991 deadline.
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    \1\Among other things, the pre-amendment guidance consists of 
those portions of the proposed post-1987 ozone and carbon monoxide 
policy that concern RACT, 52 FR 45044 (November 24, 1987); ``Issues 
Relating to VOC Regulation Cutpoints, Deficiencies, and Deviations, 
Clarification to Appendix D of November 24, 1987 Federal Register 
Notice'' (Blue Book) (notice of availability was published in the 
Federal Register on May 25, 1988); and the existing control 
technique guidelines (CTGs).
    \2\The Sacramento Metro Area retained its designation of 
nonattainment and was classified by operation of law pursuant to 
sections 107(d) and 181(a) upon the date of enactment of the CAA. 
See 55 FR 56694 (November 6, 1991).
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    The State of California submitted many revised RACT rules for 
incorporation into its SIP on March 29, 1994, including the rules being 
acted on in this notice. This notice addresses EPA's direct-final 
action for SMAQMD's Rule 442, Architectural Coatings; Rule 443, Leaks 
from Synthetic Organic Chemical and Polymer Manufacturing; Rule 446, 
Storage of Petroleum Products; Rule 447, Organic Liquid Loadings; and 
Rule 452, Can Coating. The SMAQMD adopted these rules on November 16, 
1993. These submitted rules were found to be complete on June 3, 1994 
pursuant to EPA's completeness criteria that are set forth in 40 CFR 
part 51, appendix V\3\ and are being finalized for approval into the 
SIP.
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    \3\EPA adopted the completeness criteria on February 16, 1990 
(55 FR 5830) and, pursuant to section 110(k)(1)(A) of the CAA, 
revised the criteria on August 26, 1991 (56 FR 42216).
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    Rule 442 controls VOC emissions from all coatings applied to 
stationary structures and their appurtenances, to mobile homes, to 
pavements, or to curbs; Rule 443 limits emissions of VOCs from leaking 
components at chemical plants that manufacture synthetic organic 
chemicals and polymers; Rule 446 controls emissions of VOCs from 
storage tanks for organic liquids with vapor pressures greater than 1.5 
psia under actual storage conditions; Rule 447 controls VOC emissions 
at loading facilities of organic liquids; and Rule 452 limits emissions 
of VOCs from operations involved in coating of metal containers, coil 
and cans. VOCs contribute to the production of ground level ozone and 
smog. These rules were originally adopted as part of SMAQMD's effort to 
achieve the National Ambient Air Quality Standard (NAAQS) for ozone and 
in response to EPA's SIP-Call and the section 182(a)(2)(A) CAA 
requirement. The following is EPA's evaluation and final action for 
these rules.

EPA Evaluation and Action

    In determining the approvability of a VOC rule, EPA must evaluate 
the rule for consistency with the requirements of the CAA and EPA 
regulations, as found in section 110 and part D of the CAA and 40 CFR 
part 51 (Requirements for Preparation, Adoption, and Submittal of 
Implementation Plans). The EPA interpretation of these requirements, 
which forms the basis for today's action, appears in the various EPA 
policy guidance documents listed in footnote 1. Among those provisions 
is the requirement that a VOC rule must, at a minimum, provide for the 
implementation of RACT for stationary sources of VOC emissions. This 
requirement was carried forth from the pre-amended Act.
    For the purpose of assisting state and local agencies in developing 
RACT rules, EPA prepared a series of Control Technique Guideline (CTG) 
documents. The CTGs are based on the underlying requirements of the Act 
and specify the presumptive norms for what is RACT for specific source 
categories. Under the CAA, Congress ratified EPA's use of these 
documents, as well as other Agency policy, for requiring States to 
``fix-up'' their RACT rules. See section 182(a)(2)(A). Rule 442 
controls emissions from a source category for which EPA has not 
developed a CTG. This rule was evaluated against the general RACT 
requirements of the CAA (section 110 and Part D, 40 CFR Part 51), 
``Issues relating to VOC Regulation Cutpoints, Deficiencies and 
Deviations--Clarifications to Appendix D of November 24, 1987 Federal 
Register'' May 25, 1988 (EPA's Blue Book), and other EPA policies 
including the EPA Region IX/CARB document entitled: ``Guidance Document 
for Correcting VOC Rule Deficiencies'', April 1991. Further 
interpretations of EPA policy are found in the Blue Book, referred to 
in footnote 1. The CTG applicable to Rule 443 is entitled ``Control of 
Volatile Organic Compound Leaks from Synthetic Organic Chemical and 
Polymer Manufacturing Equipment'', EPA-450/3-83-006; the CTGs 
applicable to Rule 446 are entitled ``Control of Volatile Organic 
Emissions from Storage of Petroleum Liquids in Fixed-Roof Tanks'', EPA-
450/2-77-036 and ``Control of Volatile Organic Emissions from Petroleum 
Liquid Storage in External Floating Roof Tanks'', EPA-450/2-78-047; the 
CTGs applicable to Rule 447 are entitled ``Control of Hydrocarbons from 
Tank Truck Gasoline Loading Terminals'', EPA-450/2-77-026 and ``Control 
of Volatile Organic Emissions from Bulk Gasoline Plants'', EPA-450/2-
77-035; and the CTG applicable to Rule 452 is entitled ``Control of 
Volatile Organic Emissions from Stationary Sources--Volume II: Surface 
Coating of Cans, Coils, Paper, Fabrics, Automobiles, and Light-Duty 
Trucks'', EPA-450/2-77-008. In general, these guidance documents have 
been set forth to ensure that VOC rules are fully enforceable and 
strengthen or maintain the SIP.
    SMAQMD's submitted rules include the following significant changes 
from the current SIP:
Rule 442, Architectural Coatings
     Removed the Air Pollution Control Officer's (APCO) 
discretion in approving alternate test methods,
     Added statement that results by any listed test method 
showing non-compliance with any provision of the rule shall constitute 
a violation of the rule,
     Added new category for low solids stains.
Rule 443, Leaks from Synthetic Organic Chemical and Polymer 
Manufacturing
     Removed the APCO's discretion in approving alternate test 
methods,
     Added statement that results by any listed test method 
showing non-compliance with any provision of the rule shall constitute 
a violation of the rule,
     Added clear reference to EPA's capture efficiency guidance 
in 55 FR 26865, June 29, 1990.
Rule 446, Storage of Petroleum Products
     Removed the APCO's discretion in approving alternate test 
methods,
     Added clear reference to EPA's capture efficiency guidance 
in 55 FR 26865, June 29, 1990.
Rule 447, Organic Liquid Loading
     Removed the APCO's discretion in approving alternate test 
methods,
     Added definition of exempt compounds.
Rule 452, Can Coating
     Removed APCO's discretion in approving alternate test 
methods,
     Added statement that results by any listed test method 
showing non-compliance with any provision of the rule shall constitute 
a violation of the rule,
     Added recordkeeping requirement when using an emission 
control system.
    EPA has evaluated the submitted rules and has determined that they 
are consistent with the CAA, EPA regulations, and EPA policy. 
Therefore, SMAQMD's Rule 442, Architectural Coatings; Rule 443, Leaks 
from Synthetic Organic Chemical and Polymer Manufacturing; Rule 446, 
Storage of Petroleum Products; Rule 447, Organic Liquid Loadings; and 
Rule 452, Can Coating are being approved under section 110(k)(3) of the 
CAA as meeting the requirements of section 110(a) and part D.
    The final action on these rules serves as a final determination 
that the deficiencies in these rules have been corrected. Therefore, if 
this direct final action is not withdrawn, on November 15, 1994, any 
sanction or Federal Implementation Plan Clock is stopped.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future implementation 
plan. Each request for revision to the SIP shall be considered 
separately in light of specific technical, economic, and environmental 
factors and in relation to relevant statutory and regulatory 
requirements.
    EPA is publishing this document without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in a separate document in this Federal 
Register publication, the EPA is proposing to approve the SIP revision 
should adverse or critical comments be filed. This action will be 
effective November 15, 1994, unless, by October 17, 1994, adverse or 
critical comments are received.
    If the EPA receives such comments, this action will be withdrawn 
before the effective date by publishing a subsequent document that will 
withdraw the final action. All public comments received will then be 
addressed in a subsequent final rule based on this action serving as a 
proposed rule. The EPA will not institute a second comment period on 
this action. Any parties interested in commenting on this action should 
do so at this time. If no such comments are received, the public is 
advised that this action will be effective November 15, 1994.

Regulatory Process

    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
must prepare a regulatory flexibility analysis assessing the impact of 
any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
Alternatively, EPA may certify that the rule will not have a 
significant impact on a substantial number of small entities. Small 
entities include small businesses, small not-for-profit enterprises and 
government entities with jurisdiction over population of less than 
50,000.
    SIP approvals under sections 110 and 301(a) and subchapter I, part 
D of the CAA do not create any new requirements, but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP-approval does not impose any new requirements, I certify 
that it does not have a significant impact on any small entities 
affected. Moreover, due to the nature of the Federal-state relationship 
under the CAA, preparation of a regulatory flexibility analysis would 
constitute Federal inquiry into the economic reasonableness of state 
action. The CAA forbids EPA to base its actions concerning SIPs on such 
grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S. 
Ct. 1976); 42 U.S.C. 7410 (a)(2).
    The Office of Management and Budget has exempted this regulatory 
action from Executive Order 12866 review.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Intergovernmental relations, Ozone, 
Reporting and recordkeeping requirements, Volatile organic compounds.

    Note: Incorporation by reference of the State Implementation 
Plan for the State of California was approved by the Director of the 
Federal Register on July 1, 1982.

    Dated: August 27, 1994.
Felicia Marcus,
Regional Administrator.

    Part 52, chapter I, title 40 of the Code of Federal Regulations is 
amended as follows:

PART 52--[AMENDED]

    1. The authority citation for Part 52 continues to read as follows:

    Authority: 42 U.S.C. 7401-7671q.

Subpart F--California

    2. Section 52.220 is amended by adding paragraphs (c)(196) to read 
as follows:


Sec. 52.220  Identification of plan.

* * * * *
    (c) * * *
    (196) New and amended regulations for the following APCDs were 
submitted on March 29, 1994 by the Governor's designee.
    (i) Incorporation by reference.
    (A) Sacramento Metropolitan Air Quality Management District.
    (1) Sacramento Metropolitan AQMD rules 442, 443, 446, 447, and 452 
adopted on November 16, 1993.
* * * * *
[FR Doc. 94-23081 Filed 9-14-94; 10:27 am]
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